Republic of thePhilippines

Supreme Court
Manila

EN BANC



MONICO K. IMPERIAL, JR.,
Petitioner,








- versus -






G.R. No. 191!

Present:

CORONA, C.J.,
CARPIO,
VELASCO, JR,
LEONAR!O-!E CAS"RO,
#RION,
PERAL"A,
#ERSA$IN,
!EL CAS"ILLO,
A#A!,
VILLARA$A, JR,





GO"ERNMEN# SER"ICE
INS$RANCE S%S#EM,
Respon%ent
PERE&,
$EN!O&A,
SERENO,
RE'ES, (n%
PERLAS-#ERNA#E, JJ.

Pro)ul*(te%:

October +, ,-..
/000000000000000000000000000001/


& E C I S I O N

BRION, J.'


2e resolve the petition for revie3 on certiorari,
4.564.6
file% b7 petitioner $onico 8 I)peri(l, Jr,
fro) the !ece)ber .-, ,--9 %ecision
4.+64,6
(n% the :ebru(r7 ;, ,-.- resolution
4.;6456
of the Court
of Appe(ls <CA= in CA->R SP No .-.,9?

#(e )a*tual Ante*e+ent,

On October .9, ,--;, the >overn)ent Service Insur(nce S7ste) <GSIS= (%)inistr(tivel7
ch(r*e% the petitioner, then #r(nch $(n(*er of the >SIS N(*( :iel% Office, 3ith Dishonesty,
Grave Misconduct and Conduct Prejudicial to the Best Interest of the Service
4.@64+6
for (pprovin*
the reAuests for s(l(r7 lo(ns of ei*ht >SIS N(*( :iel% Office e)plo7ees 3ho l(cBe% the
contribution reAuire)ents un%er >SIS Polic7 (n% Proce%ur(l >ui%elines <PPG= No .;5-99,
4.?64;6

*ivin* the) un3(rr(nte% benefits throu*h his evi%ent b(% f(ith, )(nifest p(rti(lit7 or *ross
ne*li*ence, (n% c(usin* inCur7 to the pension fun%
4.D64@6
Ee 3(s reAuire% to (ns3er (n% 3(s
preventivel7 suspen%e% for ninet7 <9-= %(7s

On Jul7 ,., ,--@, Att7 $(nuel " $olin(, the petitionerFs purporte% counsel, file% (n unverified
(ns3er in beh(lf of the petitioner, 3ho 3(s then in theGnite% St(tes of A)eric( Att7 $olin(
e/pl(ine% th(t the petitioner *r(nte% the lo(n (pplic(tions un%er (n e/istin* bo(r% resolution,
3ith the (pprov(l of then >SIS Vice Presi%ent Ro)eo Huil(t(nI the lo(ns 3ere full7 p(i%,
3ithout c(usin* (n7 preCu%ice to the service

In ( Jul7 ,@, ,--@or%er,
4.964?6
Ee(rin* Officer Violet( C: Huintos set the pre-he(rin*
conference on Au*ust .?, ,--@ (t the >SIS Le*(Jpi :iel% Office A 3eeB l(ter, in (n Au*ust ,,
,--@ or%er,
4,-64D6
the Ee(rin* Officer )o%ifie% her previous or%er (n% set the venue (t the >SIS
N(*( :iel% Office

Att7 $olin( file% ( )otion for reconsi%er(tion, pointin* out th(t the >SIS Rules of Proce%ure
set the venue of pre-he(rin* conferences (t the >SIS $(in Office in P(s(7Cit7 "he Ee(rin*
Officer %enie% the )otion for reconsi%er(tion in her Au*ust .., ,--@or%er,
4,.6496
st(tin* th(t the
prosecution reAueste% the ch(n*e of venue Copies of the or%er 3ere %ul7 sent vi( f(/ (n%
re*ul(r )(il Atty. Molina received the faxed coy on Au!ust "#, $%%&, 'hile he received the
re!istered (ail on Au!ust "), $%%&.

At the sche%ule% Au*ust .?, ,--@pre-he(rin* conference, the petitioner (n% Att7 $olin(
f(ile% to (ppe(r Att7 $olin( liBe3ise f(ile% to sub)it the petitionerFs verific(tion of the (ns3er
(n% to sub)it ( letter of (uthorit7 to represent the petitioner in the c(se On the prosecutionFs
)otion, the Ee(rin* Officer %ecl(re% the petitioner to h(ve 3(ive% his ri*ht to file his (ns3er
(n% to h(ve ( for)(l investi*(tion of his c(se, (n% e/pun*e% the unverifie% (ns3er (n% other
ple(%in*s file% b7 Att7 $olin( fro) the recor%s "he c(se 3(s then sub)itte% for resolution
b(se% on the prosecutionFs sub)itte% %ocu)ents
4,,64.-6

>SIS Presi%ent (n% >ener(l $(n(*er 2inston : >(rci( foun% the petitioner *uilt7 of
*r(ve )iscon%uct (n% con%uct preCu%ici(l to the best interest of the service
4,564..6
Ee note% th(t
the evi%ence presente% b7 the prosecution cle(rl7 sho3e% th(t the petitionerFs (pprov(l of the
reAuests for s(l(r7 lo(ns of ei*ht >SIS N(*( :iel% Office e)plo7ees 3(s i)proper bec(use the7
l(cBe% the contribution reAuire)ents un%er PP> No .;5-99 Ee (lso note% th(t the ple(%in*s
file% b7 Att7 $olin(, (s the petitionerFs purporte% counsel, 3ere e/pun*e% fro) the recor%s, but
he, nonetheless, %iscusse% the %efenses r(ise% in these ple(%in*s (n% foun% the) un)eritorious
Notin* th(t this 3(s the petitionerFs secon% (%)inistr(tive offense <he h(% previousl7 been
suspen%e% for one 4.6 7e(r for *ross ne*lect of %ut7 for f(ilin* to i)ple)ent the
reco))en%(tions of the Intern(l Au%it Services >roup pert(inin* to the h(n%lin* of returne%-to-
sen%er checBs, resultin* in ( >SIS N(*( :iel% Office C(shier %efr(u%in* the >SIS of checBs=,
>(rci( i)pose% the pen(lt7 of %is)iss(l 3ith the (ccessor7 pen(lties of forfeiture of retire)ent
benefits, c(ncell(tion of eli*ibilit7 (n% perpetu(l %isAu(lific(tion fro) re-e)plo7)ent in the
*overn)ent On the s()e %(te, the >SIS #o(r% of "rustees (pprove% the %ecision
4,+64.,6

In ( June @, ,--? resolution,
4,;64.56
>(rci( %enie% the petitionerFs )otion for reconsi%er(tion,
notin* th(t Att7 $olin( h(% no (uthorit7 to (ppe(r for (n% in beh(lf of the petitioner, h(vin*
f(ile% to sub)it (n7 for)(l 3ritten (uthorit7I th(t the petitionerFs (ns3er 3(s unverifie%I (n%
th(t, in (n7 event, the petitioner h(% no evi%ence sufficient to overturn the evi%ence presente% b7
the prosecution

"he petitioner (ppe(le% to the Civil Service Co))ission <CSC=, reiter(tin* his (r*u)ents of
%eni(l of %ue process (n% the l(cB of evi%ence (*(inst hi)

"he CSC reCecte% the petitionerFs cl(i) of %ue process viol(tion, fin%in* th(t the
petitionerFs filin* of ( )otion for reconsi%er(tion cure% 3h(tever proce%ur(l %ue process %efect
there )i*ht h(ve been
4,@64.+6
It note% th(t the recor%s of the c(se sho3e% th(t the petitioner
(pprove% the lo(n (pplic(tions %espite the p(tent ineli*ibilit7 of the lo(n (pplic(nts "he CSC
thus (ffir)e% the petitionerFs %is)iss(l for *r(ve )iscon%uct, but (%%e% (s (n (ccessor7 pen(lt7
the prohibition fro) t(Bin* (n7 civil service e/()in(tion

"he petitioner elev(te% his c(se to the CA throu*h ( petition for revie3 un%er Rule +5 of the
Rules of Court

In its !ece)ber .-, ,--9%ecision,
4,?64.;6
the CA %is)isse% the petition, (n% %enie% the
subseAuent )otion for reconsi%er(tion,
4,D64.@6
fin%in* no reversible error in the ch(llen*e% CSC
Resolution

#(e Petition

In the petition before us, the petitioner (r*ues th(t he 3(s %enie% %ue process 3hen the
Au*ust .?, ,--@ pre-he(rin* conference 3(s con%ucte% in his (bsence 3ithout prior notice of the
Au*ust .., ,--@ or%er %en7in* the )otion for reconsi%er(tion of the or%er of ch(n*e of venue,
since Att7 $olin( receive% b7 re*istere% )(il ( cop7 of the Au*ust .., ,--@ or%er onl7 on
Au*ust .D, ,--@, or ( %(7 (fter the Au*ust .?, ,--@ pre-he(rin* conference "he petitioner
ple(%s *oo% f(ith in (pprovin* the lo(ns b(se% on (n e/istin* >SIS #o(r% Resolution 3hich
(uthoriJes br(nch )(n(*ers to (pprove lo(ns for )eritorious (n% speci(l re(sonsI the lo(ns 3ere
cle(re% b7 the Co))ission on Au%it (n% settle% b7 the borro3ers Ee conten%s th(t the pen(lt7
of %is)iss(l is too severe in the (bsence of (n7 3ron*ful intent (n% *iven his +- 7e(rs of
*overn)ent service

#(e Ca,e -or Re,pon+ent GSIS

"he >SIS sub)its th(t the petitioner 3(s not %enie% %ue process bec(use Att7 $olin(
receive% onAu*ust .+, ,--@( f(/ cop7 of theAu*ust .., ,--@or%er On the )erits of the c(se, the
>SIS )(int(ins th(t the evi%ence on recor% %ul7 est(blishe% the petitionerFs (%)inistr(tive
culp(bilit7 for (cts ini)ic(l to the interest of the public, 3(rr(ntin* his %is)iss(l fro) the
serviceI the pen(lt7 of %is)iss(l 3(s 3(rr(nte% since this 3(s the petitionerFs secon%
(%)inistr(tive offense

#(e I,,ue,

"he issues (re: <.= 3hether the petitioner 3(s %enie% %ue process, (n% <,= 3hether there 3(s
subst(nti(l evi%ence to support petitionerFs %is)iss(l fro) the service

#(e Court., Rulin/


0e PAR#IALL% GRAN# t(e petition an+ mo+i-1 t(e -in+in/, o- t(e CA pertainin/ to
t(e petitioner., a+mini,trati2e lia3ilit1.

The Procedural Due Process Issue

Proce%ur(l %ue process is the constitution(l st(n%(r% %e)(n%in* th(t notice (n% (n opportunit7 to
be he(r% be *iven before Cu%*)ent is ren%ere% As lon* (s ( p(rt7 is *iven the opportunit7 to
%efen% his interests in %ue course, he 3oul% h(ve no re(son to co)pl(inI the essence of %ue
process is in the opportunit7 to be he(r%
4,964.?6
A for)(l or tri(l-t7pe he(rin* is not (l3(7s
necess(r7

In this c(se, 3hile the petitioner %i% not p(rticip(te in the Au*ust .?, ,--@ pre-he(rin*
conference <%espite receipt on Au*ust .+, ,--@ of ( f(/ cop7 of the Au*ust .., ,--@ or%er=,
>(rci(Fs %ecision of :ebru(r7 ,., ,--? %ul7 consi%ere% (n% %iscusse% the %efenses r(ise% in
Att7 $olin(Fs ple(%in*s, (lthou*h the (ns3er 3(s or%ere% e/pun*e% fro) the recor%s bec(use it
3(s unverifie% (n% bec(use Att7 $olin( f(ile% to sub)it ( letter of (uthorit7 to represent the
petitioner

2h(t ne*(tes (n7 %ue process infir)it7 is the petitionerFs subseAuent )otion for reconsi%er(tion
3hich cure% 3h(tever %efect the Ee(rin* Officer )i*ht h(ve co))itte% in the course of he(rin*
the petitionerFs c(se
45-64.D6
A*(in, >(rci( %ul7 consi%ere% the (r*u)ents presente% in the
petitionerFs )otion for reconsi%er(tion 3hen he ren%ere% the June @, ,--? resolution
45.64.96
"hus,
the petitioner 3(s (ctu(ll7 he(r% throu*h his ple(%in*s

Findings of facts of administrative bodies accorded finality when supported by substantial
evidence

$iscon%uct h(s ( le*(l (n% unifor) %efinition $iscon%uct h(s been %efine% (s (n intention(l
3ron*%oin* or ( %eliber(te viol(tion of ( rule of l(3 or st(n%(r% of beh(vior, especi(ll7 b7 (
*overn)ent offici(l
45,64,-6
A )iscon%uct is *r(ve 3here the ele)ents of corruption, cle(r intent to
viol(te the l(3 or fl(*r(nt %isre*(r% of est(blishe% rule (re present
45564,.6
Other3ise, ( )iscon%uct
is onl7 si)ple

No %oubt e/ists in our )in% th(t the petitioner co))itte% )iscon%uct in this c(se "he recor%s
cle(rl7 sho3 th(t the petitioner co))itte% the (cts co)pl(ine% of, i.e, he (pprove% the reAuests
for s(l(r7 lo(ns of ei*ht >SIS N(*( :iel% Office e)plo7ees 3ho l(cBe% the necess(r7
contribution reAuire)ents un%er PP> No .;5-99 After ( c(reful revie3 of the recor%s,
ho3ever, 3e %is(*ree 3ith the fin%in*s of the >SIS, the CSC (n% the CA th(t the petitionerFs
(cts constitute% *r(ve )iscon%uct 2hile 3e (ccor% *re(t respect to the f(ctu(l fin%in*s of
(%)inistr(tive (*encies th(t )iscon%uct 3(s co))itte%, 3e c(nnot ch(r(cteriJe the offense
co))itte% (s *r(ve No subst(nti(l evi%ence 3(s (%%uce% to support the ele)ents of
Kcorruption,L Kcle(r intent to viol(te the l(3L or Kfl(*r(nt %isre*(r% of est(blishe% ruleL th(t )ust
be present to ch(r(cteriJe the )iscon%uct (s *r(ve

2e (re (3(re th(t to the CSC, the )ere (ct of (pprovin* the lo(n (pplic(tions on sever(l
occ(sions proves the ele)ent of fl(*r(nt %isre*(r% of est(blishe% rules to constitute *r(ve
)iscon%uct "hus, it s(i%:

"he (ct of the (ppell(nt in (pprovin* s(l(r7 lo(n (pplic(tions of his subor%in(tes over (n%
(bove the prescribe% r(tes un%er the >SIS polic7, not onl7 once but sever(l ti)es, in%ic(tes his
fl(*r(nt (n% 3(nton tr(ns*ression of the s(i% polic7 Ee, in f(ct, (buse% his (uthorit7 in %oin* so
45+64,,6

:l(*r(nt %isre*(r% of rules is ( *roun% th(t Curispru%ence h(s (lre(%7 touche% upon It h(s been
%e)onstr(te%, ()on* others, in the inst(nces 3hen there h(% been open %efi(nce of ( custo)(r7
ruleI
45;64,56
in the repe(te% volunt(r7 %isre*(r% of est(blishe% rules in the procure)ent of suppliesI
45@64,+6
in the pr(ctice of ille*(ll7 collectin* fees )ore th(n 3h(t is prescribe% for %el(7e%
re*istr(tion of )(rri(*esI
45?64,;6
3hen sever(l viol(tions or %isre*(r% of re*ul(tions *overnin* the
collection of *overn)ent fun%s 3ere co))itte%I
45D64,@6
(n% 3hen the e)plo7ee (rro*(te% unto
herself responsibilities th(t 3ere cle(rl7 be7on% her *iven %uties
45964,?6
#(e *ommon
+enominator in t(e,e *a,e, 4a, t(e emplo1ee., propen,it1 to i/nore t(e rule, a, *learl1
mani-e,te+ 31 (i, or (er a*tion,.
Gn%er the circu)st(nces of the present c(se, 3e %o not see the t7pe of open %efi(nce (n%
%isre*(r% of >SIS rules th(t the CSC observe% In f(ct, the CSCFs fin%in*s on the petitionerFs
(ctions prior to the (pprov(l of the lo(ns ne*(te the presence of (n7 intent on the petitionerFs p(rt
to %eliber(tel7 %ef7 the polic7 of the >SIS :irst, >SIS br(nch )(n(*ers h(ve been *r(nte% in
the p(st the (uthorit7 to (pprove lo(n (pplic(tions be7on% the prescribe% reAuire)ents of >SISI
secon%, there 3(s ( custo)(r7 lenient pr(ctice in the (pprov(l of lo(ns e/ercise% b7 so)e br(nch
)(n(*ers not3ithst(n%in* the e/istin* >SIS polic7I (n% thir%, the petitioner first sou*ht the
(pprov(l of his i))e%i(te supervisor before (ctin* on the lo(n (pplic(tions "hese circu)st(nces
run counter to the ch(r(cteristic fl(*r(nt %isre*(r% of the rules th(t *r(ve )iscon%uct reAuires

"hus, the petitionerFs li(bilit7 un%er the *iven f(cts onl7 involves si)ple )iscon%uct As #r(nch
$(n(*er of the >SIS N(*( :iel% Office, he is presu)e% to Bno3 (ll e/istin* policies, *ui%elines
(n% proce%ures in c(rr7in* out the (*enc7Fs )(n%(te in the (re( #7 (pprovin* the lo(n
(pplic(tions of ei*ht >SIS N(*( :iel% Office e)plo7ees 3ho %i% not full7 )eet the reAuire%
Au(lific(tions, he co))itte% ( serious l(pse of Cu%*)ent sufficient to hol% hi) li(ble for si)ple
)iscon%uct

"he Revise% Gnifor) Rules of the Civil Service <Civil Service *ules= cl(ssifies si)ple
)iscon%uct (s ( less *r(ve offense Gn%er Section ;,<#= <,=, Rule IV of the Civil Service Rules,
the co))ission of si)ple )iscon%uct is pen(liJe% b7 suspension for one <.= )onth (n% one <.=
%(7 to si/ <@= )onths for the first offense, (n% %is)iss(l fro) the service for the secon% offense
2hile recor%s sho3 th(t this is not the petitionerFs first offense (s he 3(s previousl7 suspen%e%
for one <.= 7e(r for ne*lect of %ut7, 3e believe th(t his %is)iss(l 3oul% be %isproportion(te to
the n(ture (n% effect of the tr(ns*ression he co))itte% (s the >SIS %i% not suffer (n7 preCu%ice
throu*h the lo(ns he e/ten%e%I these lo(ns 3ere for >SIS e)plo7ees (n% 3ere %ul7 p(i% for
"hus, for his secon% si)ple )iscon%uct, 3e i)pose on the petitioner the pen(lt7 of suspension
fro) the l(pse of his preventive suspension b7 >SIS up to the fin(lit7 of this !ecision
4+-64,D6

05ERE)ORE, pre)ises consi%ere%, 3e PAR#IALL% GRAN# the petition for revie3 on
certiorari (n% MO&I)% the (ss(ile% %ecision (n% resolution of the Court of Appe(ls Petitioner
$onico 8 I)peri(l, Jr is foun% >GIL"' of SIMPLE MISCON&$C# (n% is hereb7
S$SPEN&E& fro) the ti)e the preventive suspension th(t >SIS i)pose% l(pse%, up to the
fin(lit7 of this !ecision

SO OR&ERE&.

AR#$RO &. BRION
Associ(te Justice


0E CONC$R'





RENA#O C. CORONA
Chief Justice





AN#ONIO #. CARPIO
Associ(te Justice





PRESBI#ERO J. "ELASCO, JR.
Associ(te Justice




#ERESI#A J. LEONAR&O6&E CAS#RO
Associ(te Justice




&IOS&A&O M. PERAL#A
Associ(te Justice






L$CAS P. BERSAMIN
Associ(te Justice


MARIANO C. &EL CAS#ILLO
Associ(te Justice




ROBER#O A. ABA&
Associ(te Justice



MAR#IN S. "ILLARAMA, JR.
Associ(te Justice




JOSE POR#$GAL PERE7
Associ(te Justice




JOSE CA#RAL MEN&O7A
Associ(te Justice




<On Le(ve=
MARIA LO$R&ES P. A. SERENO BIEN"ENI&O L. RE%ES
Associ(te Justice Associ(te Justice




ES#ELA M. PERLAS6BERNABE
Associ(te Justice


C E R # I ) I C A # I O N

Pursu(nt to Section .5, Article VIII of the Constitution, I certif7 th(t the conclusions in the
(bove !ecision h(% been re(che% in consult(tion before the c(se 3(s (ssi*ne% to the 3riter of the
opinion of the Court


RENA#O C. CORONA
Chief Justice